Bridging Rhetoric and Practice: New Perspectives on Barriers to Gendered Change

ABSTRACT

This article presents a new methodology, Gender Knowledge Contestation Analysis, and uses it to examine the processes under way when transformative gender equality policies, such as gender mainstreaming are implemented. Drawing on data gathered in the European Commission, the findings show the processes linking high-level rhetorical policy statements, strategic policies, and daily working practices. This analysis enables exploration of the mechanisms through which indifference to and nonawareness of gendered policy problems are collectively constituted and methods through which they can be challenged. Findings thus deepen our understanding of barriers to the implementation of gender mainstreaming and the steps required for its effective implementation.     

Organizational perspective to gender mainstreaming in the Finnish state administration

Gender mainstreaming has been celebrated as a new policy strategy for change in gender relations. However, its transformative potential seems to be lost in the process of implementation. The aim of this article is to evaluate the policy effectiveness of gender mainstreaming and its ability to bring about change in gendered social structures and practices. Previous research has focused on gender mainstreaming as a policy strategy. This article provides a new perspective on the problems of implementation by approaching gender mainstreaming from an organizational perspective. Gender mainstreaming takes place in certain organizational contexts, implemented by local actors. This article reveals the practices of implementation in the Finnish state administration, specifically in the Ministry of Defence. The analysis is based on a discursive reading of thirteen group and individual interviews collected in the Ministry of Defence in 2012. The article pinpoints two interlinking problems concerning implementation of gender mainstreaming on the organizational level. First, the state officials, who should implement gender mainstreaming, do not have enough information to do so successfully. Second, there is resistance toward gender mainstreaming on the organizational level. This article suggests that negotiations about gender, gender equality and gender mainstreaming as complex issues concerned with social power relations should be included in the process of implementing gender mainstreaming.     

Gender mainstreaming and evaluation in the EU: comparative perspectives from feminist institutionalism

This article presents a focused comparative analysis of the institutionalization of two governance practices in the European Commission that levy distinct challenges to the gender status quo: gender mainstreaming (which overtly challenges gender bias) and evaluation (which does not have explicit feminist aspirations). With reference to five dimensions, we identify evaluation as relatively strongly institutionalized, and gender mainstreaming as relatively weakly institutionalized. We draw on the explanatory power of feminist institutionalism to unpack these findings, arguing that a feminist institutional perspective can shed light on this variation, as it provides greater insight into the formal and informal institutions that constrain, enable and shape the implementation of evaluation and gender mainstreaming. We assert that the notion of path dependency, the logic of appropriateness, and the concept of layering serve as useful tools to understand the gendered nature of the European Commission. This research provides insights into the institutional factors that impact the implementation of gender equality strategies (such as gender mainstreaming). In turn, this contributes to the development of more effective strategies to promote institutional change toward greater equality.     

Gender Mainstreaming in Theory and Practice

This article utilizes the findings of a recently completed,eight-country research project to visit some key issues in thetheory and practice of gender mainstreaming. The research resultsindicate that gender mainstreaming is a diverse entity whenlooked at from a cross-national perspective but rather hollowwhen considered within the national setting. To the extent thatthere is a "common core" to gender mainstreaming in action acrosscountries, it lies in the tendency to apply the approach ina technocratic way and to be nonsystemic in compass. The argumentis advanced that this is at least in part attributable to particularitiesin the development of mainstreaming. The article suggests thatgender mainstreaming is underdeveloped as a concept and identifiesa need to elaborate further on some fundaments. In particular,the conceptualization of mainstreaming needs to be rethoughtwith special attention devoted to the understanding of the problematicof gender inequality that underlies it and the articulationof the relationship between gender mainstreaming and societalchange.     

Gender Mainstreaming: An Assessment of Its Conceptual Value for Gender Equality

Evaluations of gender mainstreaming show that there has been limited change to gender equality and it has been very fragmented across EU countries. Therefore, the purpose of this article is to evaluate the heuristic and conceptual value of the term gender mainstreaming as a metaphor for gender equality. Our results from applying an image‐schematic model of metaphor evaluation show that gender mainstreaming represents a nonsensical metaphor for gender equality. We conclude with recommendations for reconceptualizing gender mainstreaming.     

Gender Mainstreaming: The Answer to the Gender Pay Gap?

This article examines the argument that gender mainstreaming offers the way forward for closing the gender pay gap. It juxtaposes research on the process of gender mainstreaming with our account of the processes involved in Australian state government Inquiries into the gender pay gap since the late 1990s. We indicate that the continuous process of analysis and response that gender mainstreaming can offer demands political will, intensive links between research and action, and adequate resources — which means that gender mainstreaming is seldom delivered in practice. We use our account of the Australian Inquiries to argue that, provided adequate political and financial resources are in place, the gender pay gap can be narrowed through the institutional mechanisms of an industrial relations system but that the regulatory approach is limited by its vulnerability to changes in industrial relations policy. The article concludes that, whatever strategy is used to narrow the gender pay gap, it must be able to show those who use and observe it that gender itself is a continuous, effortful and political process.     

Bureaucratic Role Perceptions and Gender Mainstreaming in Canada

Since the mid‐1990s, governments have adopted gender mainstreaming (GM) as a strategy for achieving gender equality and improving women's social, economic and political conditions. Yet, studies indicate that GM continues to be unevenly implemented, both within and across countries. To explain this outcome, this paper focuses on the local implementers of GM — the gender focal points — and how they understand GM and interpret it in their everyday work. Drawing upon interviews with gender focal points in the Canadian public service, we explore how bureaucratic role perceptions shape how these local actors understand GM and how they navigate the complex terrain between bureaucratic neutrality and the equality agenda of gender mainstreaming. Our exploratory study shows no common understanding among our interviewees, revealing how the meaning of gender mainstreaming varies depending on whether the public servant views himself or herself as policy analyst, policy advisor or policy advocate. Based on these insights, we conclude with suggestions for future research on gender mainstreaming.     

From evidence to action: Applying gender mainstreaming to pay gaps in the Welsh public sector

Progress on reducing gender disparities remains painfully slow, despite efforts to identify the determinants of gender pay gaps and specify size and shape. Recent studies highlight the need for a more nuanced account of the way that public policy shapes organizational responses and insights into the types of organizational practices that diminish pay disparities. In response, this research reports on an action research intervention in three large Welsh public organizations, subject to a unique statutory equality duty. Data demonstrate how an evidence‐based gender mainstreaming approach facilitated the development of a ‘no blame’ strategy, which legitimized organizational proactivity through collaborative and empowering change management processes. The research contributes to the study of gender pay gaps by demonstrating that gender mainstreaming, with facilitative local conditions and supportive public policy, shapes action on gender segregation, with particular success in women's low‐paid employment. Conclusions highlight theoretical and policy implications arising from the research.     

Caught between the orientalist–occidentalist polemic: gender mainstreaming as feminist transformation or neocolonial subversion?*

Here we provide a critical reading of gender mainstreaming as a potential emancipatory force that has been co-opted within orientalist–occidentalist polemics. This remains a critical period in the “mainstreaming” debate, where feminist reappropriation is necessary to repoliticize the concept and reorient development sector focus from tokenistic inclusivity to social transformation. We consider two sides of the debate. In the first scenario, the requirement for gender mainstreaming in international development discourse has not only failed to address its original feminist goals, but has become (or remained) an extension of orientalist, neocolonial projects to control and “civilize” developing economies. Here, a putative concern for gender equality in development is used as a means to distinguish between the modern, civilized One and the colonial, traditional Other. In the second scenario, gender mainstreaming is held up as all that these “othered” occidentalist forces stand against; an exemplar of the inappropriate imposition of “western” moralistic paradigms in non-western contexts. Ultimately, the co-optation of gendered discourses in development through these orientalist–occidentalist polemics serves to obfuscate the continued depoliticization of mainstreaming. A critical question remains: can gender mainstreaming ever transcend this discursive impasse and reassert its feminist transformatory potential?     

Gender differences and equality issues in Europe: critical aspects of gender mainstreaming policies

Gender mainstreaming is the major global strategy for the promotion of gender equality. Clear intergovernmental mandates for gender mainstreaming have been developed for all the major areas of work of the United Nations and the European Commission, including disarmament, poverty reduction, macro-economics, health, education and trade. The evaluation of equal opportunities mainly focuses on qualification measures for unemployed women and improvements in childcare facilities, and on consideration of gender mainstreaming in other policy areas as well as macro-economic effects on employment and unemployment of women. It is evident that the promotion of qualification measures and childcare facilities increases the activity rate of women, although there remain doubts about the quality and sustainability of many measures and the impact on families. In particular this article focuses on the relation between gender mainstreaming and equality issues to examine whether and how the debate on the topic is a real way to improve equality without missing gender differences and women's rights.     

Communicating equality through policy documents: On legitimacy,double logic and stable translations

This article discusses gender mainstreaming (GMS) as a strategy to implement gender equality in public work organizations by analysing discourse in terms of the theoretical notions of translation and circulation in organizations to shed light on how gender equality and the mainstreaming strategy are formulated in the documents which govern the Swedish fire and rescue services. More specifically, it looks at how the goals regarding gender equality are circulated and translated. The results show that gender equality as a practice is created in the translation of national goals in terms of the local context and its specific gender equality challenges. Furthermore, the article discusses how vague formulations in the documents are stabilized through circulation between the government and the public agency in question. The results indicate the central role played by maintaining stable translations over time and the presence of a double logic of change in the processes, as well as the importance of legitimizing gender equality initiatives.     

“Ellen Is Our Man”

This article examines the nature of shifting gender roles in Liberia's postconflict reconstruction process. Specifically, it investigates the ways in which political authority is gendered and the agency that women in politics employ to justify their participation as they attempt to reduce gender inequalities at the institutional level. I argue that the intervention of the international community has been instrumental in providing space and resources for gender mainstreaming, however in the absence of more in-depth intersectional analyses of gender dynamics, the unintended consequences of peacebuilding policies could hinder the sustainability of long-term peace. This article is based on a qualitative research country study conducted by the author in rural and urban Liberia following the election of Ellen Johnson Sirleaf. A discussion of key findings is exemplified with excerpts from key informant interviews and focus group discussions that seek to give voice to a cross-section of Liberians, so that they can contribute to the ongoing debate on gender mainstreaming in postconflict societies and bridge the gap between local and international discourses.     

Force of Circumstance: Feminist Discourse in a Matrilineal Society

The present paper discusses some of the ways feminist discourse was articulated on Bougainville both during and after the secessionist war that took place on the island between 1989 and 2000. Inspired by feminist discourse, non-governmental organisations have reconfigured Bougainvillean women into newly organised spheres of influence (as moral agents, peacemakers or victims) that potentially distort the matrilineal structure of their society, which is the true source of the women's power and authority. Gender mainstreaming has become a major platform for social and political change managed by outside agencies in what is now the Autonomous Region of Bougainville, Papua New Guinea. The present paper engages with current feminist debate that challenges the universal application of the concept of gender and gender mainstreaming, and especially considers the indigenous African critique in relation to matrilineal societies.     

Integrating the gender dimension in teaching,research content & knowledge and technology transfer: Validating the EFFORTI evaluation framework through three case studies in Europe

Gender equality and gender mainstreaming in research is one of the six European Research Area (ERA) priorities. Integrating the gender dimension in research content and teaching is one of its three objectives. It is arguably the objective where least progress has been made. In this article we contribute to the evidence base by applying the EFFORTI evaluation framework to three empirical case study interventions that aim to integrate the gender dimension in tertiary education and research content. Comparison is based on an evaluation of the design of the intervention, those factors that have enabled/ hindered its implementation as well as an assessment of outcomes and impacts. The findings of the case studies highlight the importance of design, specifically regarding resources, legal status and the definition and operationalisation of the gender concept. Implementation hinges on top-level institutional commitment and mainstreaming gender studies with support of a central unit and crucially gender competence. A lack of recognition and status of gender studies and subsequent innovations was seen to hamper implementation. Outcomes and impacts included an increased awareness and interest in gender, increased gender competence, a push towards gender equality regarding representation and organisational change as well as an improved accreditation process and more and better research.     

Evaluation from a Gender+ Perspective as a Key Element for (Re)gendering the Policymaking Process

ABSTRACT

Feminist scholars have challenged the neutrality of policymaking processes and the outputs resulting from these processes. However, some elements of policymaking have not been studied as well as others. In this article I explore the concept of evaluation from a gender+ perspective as an essential step for a complete gender mainstreaming strategy, which can help to identify gender issues that should be integrated into the content of evaluated policies and to ensure gender does not get lost in the policymaking process. This exploration is carried out by relying on feminist policy and evaluation studies.     

Re‐inventing the Gendered Organization: Staff Attitudes towards Women and Gender Mainstreaming in NGOs in Malawi

Gender inequality within non‐governmental organizations (NGOs) is constructed on a daily basis through the gendered norms, attitudes and practices of individuals within them. The continual re‐invention of a gendered organization ensures the maintenance of the status quo and therefore the privileging of male/masculine interests over female/feminine interests. Gender mainstreaming is an approach designed to alter the status quo and facilitate women's empowerment. In Malawi, many NGOs have adopted gender mainstreaming as a strategy to address gender inequality both within their organizations and with the communities where they work. Gender mainstreaming initiatives involve a variety of activities including hiring more women staff members, designing policies within the organization to promote gender equality and educating staff members about gender issues through training workshops. While these strategies represent important steps forward for gender equality, it is not clear to what extent these policies and initiatives are translating into meaningful change within the organization.     

Integrating or Setting the Agenda? Gender Mainstreaming in the European Constitution-Making Process

The European Union (EU) constitution-making process has adoptedan "integrating" rather than an "agenda-setting" approach togender mainstreaming. This argument draws on analysis of boththe European Constitutional Convention and its product—theConstitutional Treaty. Five indicators of application of mainstreamingserve as reference points for exploring how it has been appliedin the EU Constitutional Convention: a broader concept of genderequality, the incorporation of a gender perspective into themainstream, equal representation of women, the prioritizationof gender policy objectives, and a shift in institutional andorganizational culture. The article provides a tentative explanationfor the failure of the EU constitution-making process to adoptan "agenda-setting" approach to gender mainstreaming.     

Displacement and Empowerment: Reflections on the Concept and Practice of the Council of Europe Approach to Gender Mainstreaming and Gender Equality

This article measures one of the foundational texts of gendermainstreaming, namely, the final report of the Group of Specialists on Mainstreaming(Council of Europe 1998) against theoreticalconcepts of displacement and empowerment. While the Councilof Europe process approach is shown to be a fundamental "displacing"asset, there are important shortcomings, such as its consensualistpremise, lack of space for oppositional politics, and generaltechnocratic understanding of gender mainstreaming, hinderingempowerment. The ambivalence of its articulation of the goalof gender equality is particularly problematic in view of thelogic of the dual agenda in gender mainstreaming. More explicitpower analyses are highly needed.     

Gender Mainstreaming versus Diversity Mainstreaming: Methodology as Emancipatory Politics

This article examines the question of whether and how the intersectional oppression of sexism and racism can be challenged by government policy. It draws on a case study of an Indigenous policy strategy in Australia to argue that, in contrast to concerns expressed by feminist policymakers, gender equality is not inevitably neglected when the target for remedial action is institutional racism. Our study suggests that successful action on Indigenous emancipation necessarily mobilizes a methodology for moving past one‐dimensional category distinctions. Therefore, focusing on the task of translating declared policy goals into action can provide a way out of the impasse over whether ‘diversity’ or ‘gender’ is the better vehicle for mainstreaming equity policy. To develop its case, the article draws conclusions about the politics of methodology from gender mainstreaming debates, intersectionality theory and institutional ethnography, then uses our conclusions to analyze the political and methodological effectiveness of the Indigenous policy strategy.     

社会性别主流化在中国：进展和挑战

第四次世界妇女大会对中国妇女和中国人民有非同寻常的意义。20年前,将性别观点纳入社会发展各领域的主流,在《北京行动纲领》中被确定为促进男女平等的全球战略。尽管如此,那时在中国,很少有人知道什么是“社会性别”。20年来,在中国妇女运动、民间社会和国际机构的推动下,社会性别主流化取得了很大进展。